REPORT 

ON 

The Civil Service Commission 


Prepared under direction of 

DR. L. D. UPSON 

# 4 

Detroit Bureau of Governmental Research 


BY 

HARRINGTON PLACE 


Submitted to 

THE JOINT LEGISLATIVE COMMITTEE ON ADMINISTRATIVE 

REORGANIZATION 

and 

SUBMITTED BY THE COMMITTEE TO STATE OFFICIALS AND 
THE PUBLIC FOR COMMENT, SUGGESTION AND CRITICISM 
BEFORE APPROVAL AND ADOPTION BY THE COMMITTEE 



Columbus, Ohio 

The F. J. Heer Printing Company 

1920 

Bound at the State Bindery. 





Present 

Organization 




proposed 

Organization 







































CIVIL SERVICE COMMISSION 



*"n 

5 


Co 


HISTORICAL 

The first successful attempt at civil service legislation in Ohio was 
put through in the Payne Bill of 1910 — a bill making the merit system 
effective in the cities of the state. 

In 1912 the constitutional amendment making civil service effective 
throughout the state and in the counties thereof, as well as the cities, 
was carried in a ratio of three for to two against and the law formulating 
the organization and the procedure was passed the following year. 

At the time this law was passed, it was considered one of the best 
pieces of civil service legislation that had up to that time been enacted. 

After the passage of the civil service law of 1913, Governor Cox 
appointed as the civil service commission of Ohio, Samuel Hoskins of 
Wapakoneta, President, C. I. Brown of Findlay and C. H. Bryson of 
Athens. L. L. Faris of Lynchburg was chosen Secretary. During the 
first year the time of the commission was largely devoted to organiza¬ 
tion and the development of a policy. Records as to the exact amount of 
work accomplished are incomplete, but as is usual, there was an immense 
volume of work in examinations to get out of the way immediately the 
organization was perfected. 

During the first year, there were held 214 competitive examinations 
for original entrance into state and county service, besides numerous non¬ 
competitive examinations as provided for in the 1913 law. In the ex¬ 
aminations about 20,000 candidates were examined 

I11 late 1914 Mr. Faris .resigned as Secretary, Mr. Bryson acting 
in that capacity until July 1915/ when all three commissioners resigned. 

Meanwhile the legislature had amended the 1913 law in several 
paragraphs, notably that one relative to the appointment and number of 
commissioners. 

Governor Willis appointed Messrs. Z. B. Campbell, President, C. C. 
German and S. D. Webb to serve out the unexpired terms and Mr. W. 
E. Kirshner acted as secretary for a time. 

O11 August 30, 1915, the new commission appointed under the pro¬ 
visions of the 1915 law entered upon its duties. Dr. Z. B. Campbell 
was appointed president and Mr. S. D. Webb was appointed the other 
member of the commission. 

A competitive examination for secretary and chief examiner was 
held and Mr. K. McKinley, the present incumbent, was appointed as 
that officer from the resulting eligible list. 

Early in 1917 Mr. Webb resigned, Mr. George Ewing of Lancaster 
being appointed by Governor Cox to succeed him. Mr. Randolph W. 

3 





4 


Walton was appointed on June 15, 1917, to complete the term of Dr. 
Campbell, expiring August 30, 1917. 

Messrs. Ewing, president, and Walton are the present members of 
the commission. 

OBJECT AND EXTENT OF STUDY 

In undertaking the study of the state civil service commission of 
Ohio, the first objective is to ascertain wherein the law, the rules and 
the practice of the commission are not in accord with the best civil 
service practice, and, as far as consistent, not in accord with the generally 
accepted principles of employment agencies in private business; and 
second, wherein the present organization is not properly functioning on 
a basis of existing laws, and to make such recommendations as may 
possibly bring about a more efficient and business like administration of 
matters of personnel throughout the state service. 

THE ANALOGUE OF CIVIL SERVICE IN INDUSTRY 

By way of introduction, we must consider the analogue of civil 
service in industry, its objects, problems and methods as well as the real 
function of civil service. 

The original function of civil service was to oppose and destroy 
the abuses of the “spoils system”, by a system of checks on entrance 
to the service, and retention of persons so checked at entrance during 
good behavior. Until within the last decade a reduction of the “turn¬ 
over” and a somewhat higher qualification for entrance were the only 
noticeable results. 

Latterly, efforts have been made by civil service commissions to- 
develop a real efficiency in public service. 

Following slowly on the enormous industrial developments of the 
last two decades or twenty-five years, but developing substantially in the 
last decade, since employment and labor have been real problems, is the 
employment department in industry. This is endeavoring to do and 
accomplishing most that civil service has done for public employment, 
and much more. Instead of occupying a position comparable with that 
occupied by the civil service in public activities, the employment depart¬ 
ment of industry is a most important factor, and its chief is very little 
lower than the general manager. 

The civil service is exactly comparable with the employment depart¬ 
ment, and both are likened to the purchasing department, the difference 
being that the two former purchase personal service and the latter, ma¬ 
terials, equipment, tools and other goods. 

PROBLEMS OF EMPLOYMENT 

In order to establish a background, it is desirable and necessary to- 
have the problems of employment, whether industrial or in public service,. 


5 


firmly fixed in our minds. The differences that exist are largely those 
of imagination. Business outside of that known as public business is 
conducted for profit. In public business, which is everybody’s, and is 
conducted for the public good, the rules of modern business do not 
seem so clearly applicable, but in the present days of high costs, the 
opportunity for greater efficiency will be given more attention than is 
usually the case. 

The great, outstanding, reducible factor of production cost is the 
labor “turnover”, or in simple words, the hiring and firing of employes, 
indiscriminately. This is estimated variously by eastern employers 
(1916-17) as being from $40 to $200 per person discharged. A high 
official of one of the largest of the automobile, factories was recently 
quoted as saying that unless an employe stayed a year or more in that 
plant, his services were unprofitable to the company. This is a strong 
statement and may be taken with a grain of salt, but it is indicative of the 
importance placed on continuous service. As the “turnover” in public 
service was and is the factor whose elimination has been sought by civil 
service, this cannot be emphasized too strongly. The retention of em¬ 
ployes in service has been so stressed by employment agencies in private 
concerns that, we feel, other matters are somewhat neglected or over¬ 
looked in the effort in this direction. 

Another development in private employment is the “service record”, 
a fact history of individual performance, on which new rates of compen¬ 
sation are based. These records, developed in absolute fairness, come 
nearer to a solution of problems of industrial unrest than profit sharing 
and other forms that have - been tried. Forming as they do the basis of 
financial advancement, they enable an individual to rise, without a maxi¬ 
mum limit, to the full extent of his individual strength, application and 
ability. 

The success of any employment agency is dependent directly on 
what it has to offer in exchange for personal service. In other words, 
to get as many men of the kind that are wanted, the service must be made 
a little more attractive than any other, and the factors that make for at¬ 
tractive service are: 

First — Salary at start. It must be adequate and the same for the 
same work. 

Second -— Security in the job. 

Third — Opportunity for promotion. 

Fourth — Time for recreation and improvement. 

Fifth — Pensions and retirement funds. 

As the latter two' items are matters belonging to the welfare bureau, 
which as yet has no position in public service, they will not be discussed. 

The first three factors apply to any service, however, and are funda¬ 
mental in salary standardization and in setting up a graded classification. 




6 


The application must be obvious in the service of Ohio. The fact 
that salaries in the state service of Ohio are practically what they were 
prior to the entrance of the United States into the war makes the wonder 
grow how there is anyone left who has not been forced to other employ¬ 
ment. 

The criticisms and suggestions following are made with these es¬ 
sentials, mentioned above, in mind. 

CRITICISM OF LAW. 

The law is based on Article 15, Section 10, of the Ohio Consti¬ 
tution : 

“Appointments and promotions in the Civil Service of the 
state, the several counties and cities, shall be made according to 
merit and fitness, to be ascertained as far as practicable by com¬ 
petitive examinations. Laws shall be passed providing for the 
enforcement of this provision.” 

Only those sections of the law relevant to the points enumerated 
heretofore or that are particularly noteworthy will be discussed. 

APPOINTMENT OF COMMISSIONERS. 

Sec. 486-3. The appointment of two commissioners is unusual but 
not criticised. The method of selecting the commissioners is open to 
criticism in that the law mentions no qualification of a commissioner 
save that both shall not be members, of the same political party. Em¬ 
phasis is placed on politics — and its equalization in a body where 
politics should not be discussed. “Where patronage is lost to the ‘ins’ as 
well as the ‘outs’ there will be no partisan advantage”. That many evils 
have resulted, no one will deny. One remedy that has been suggested 
is to place the civil service commissioners in the classified service. 

If the laws were more rigid and the function of rendering decisions 
were not so large a part of the work of the commissioner, the procedure 
might be administered by one man, chosen by competition because of 
his familiarity with the needs of the public service, because of his knowl¬ 
edge of employment methods and technique of examinations, because 
of his familiarity with service records and efficiency ratings, and also 
because of his familiarity with the problems of departmental organiza¬ 
tions. The administration of examinations and records by one man is 
possible. The matter of holding hearings on appeal, etc., would present 
greater difficulty, but with the aid of a personnel board it could be made 
fully as effective as is the case at present where there are two, three, 
and even more commissioners. 


7 


POWERS AND DUTIES 

Sec. 486-7 — First subsection: “prescribe, amend and enforce ad¬ 
ministrative rules for the purpose of carrying out and making effectual, 
the provisions of this act.” 

The 1913 law gave the rules of the commission the force and effect 
of law. The present law does not, and while the commission has an 
elaborate set of rules, they have ik> means of enforcing them if there 
is, on occasion, a disposition to proceed counter to them. The effect of 
law should be given to the rules. 

CLASSIFIED AND UNCLASSIFIED DEFINED; EXEMPTIONS 

Study of the constitutional provision fails to develop any sugges¬ 
tion that exemptions to the operation of the competitive feature were to 
be general. The 1913 law made the mistake of making too many exemp¬ 
tions and the 1915 law amplified them beyond reason. 

Elective officers are exempt, of course. There is nothing in civil 
service that contemplates the restriction of our democratic privileges. 
The exemption of the heads of departments who may be said to form 
the “cabinet”- of the executive, — i. e. 5 those who assist in forming 
policies for the administration, is .logical. Otherwise there is no reason 
why a department head should be exempt, as far as the practicability of 
examination is concerned, and for reasons of economy and the good 
of the service there is every reason why a department head who is 
efficient should stay during good conduct and the continuation of efficient 
service. This applies particularly to department secretaries, who are the 
“works” of a department generally. 

There is nothing impracticable about holding examinations for em¬ 
ployes of the general assembly, and it is done in Wisconsin with dicidedly 
beneficial results. 

There is no reason for assuming the functions of boards of educa¬ 
tion in examining teachers. Librarians may be examined; they have been 
elsewhere. 

The reason for exempting three secretaries, assistants or clerks and 
one personal stenographer for elective state officers is doubtless basted 
on the “confidential” relations existing. Why there should be so- much 
“confidential” matter in affairs of public interest is not entirely clear. 
The exemption of deputies to an officer is concerned in outlining a'policy, 
in which work the deputy may be called, is reasonable, but the exemption 
of a deputy simply because he has been called a deputy some time in the 
past is unwarranted, particularly in the discharge of purely routine 
business. 

In the legal service of the state, there are reasons why the attorney 
general should make his own appointments. Unless he is absolutely 

•3 c. s. c. 




8 


sure of his subordinate, there might be a leak of information that would 
result in defeating Justice. 

Were all responsibility in connection with the determination of the 
“practicability” of an examination removed from the commission, the 
latter would be freed from the criticisms that will follow whatever 
action it may take. The more rigidly such determination is established 
by law, the freer from complication will be the administration of this law. 

As indicated previously, the 1913 law was weak in its section on 
exemptions. Too many were made then and the changes in 1915 weak¬ 
ened it still more. 

The “confidential” and “fiduciary” relations have been made the 
basis of argument for exemption ever since civil service has existed. 
Persons have been very successfully examined for such positions for a 
decade or more in Chicago, New York and other places. It is possible 
that the examining procedure in Ohio has not covered a full and detailed 
investigation of the character of applicants for such positions. Had the 
commission an ample appropriation, it could be done in the case of every 
applicant as it should be, for the state has reason to expect 100% in¬ 
tegrity from every employe and should not restrict this requirement to 
exempt employes alone. 

Furthermore, being given such amplitude in exemptions, as is be¬ 
stowed in the 1915 law, it is only human nature to ask for more and 
make every effort to get more exemptions, and often an enormous amount 
of time is wasted in discussing such matters when there should be no 
discussion or consideration given. 

From the standpoint of economy, the changes in the exempt posi¬ 
tions, with each change of administration, is one of the most expensive 
extravagances of the system. As these positions are generally those 
paying the best salaries, the “turnover” cannot be figured in the same 
low figures that express “labor turnover”, as, too often, the appointee 
to an exempt position has to learn everything about his job, and may 
be able to perform those duties only indifferently after he has learned 
what they are. 

The effect on the ambition of subordinates damping as each exemp¬ 
tion removes an opportunity for advancement to a subordinate who may 
have all of the qualifications therefor; so the more exemptions there are, 
the more expensive is the operation to the state in actual cash outlay 
per amount of work done, by reason of the “turnover” and also by 
reason of the killing of arpbition. 

The unskilled labor class should, theoretically, be regulated by civil 
service procedure, but at the present time any attempt at the procedure 
outlined in the law is useless, as the present conditions have rendered 
it entirely unavailing. It is recommended that this clause be stricken 
out, at least until conditions are greatly changed. 


9 


Notice of appointment of labor, to supply data for checking pay-, 
rolls, is all that is necessary, and practically all that is now required. 

RULES AND CLASSIFICATION 

Sec. 486-9 — The classification of positions is one of the funda¬ 
mentals of civil service. The classification incorporating standard speci¬ 
fications and contemplating standard salary rates was begun in 1916 and 
adopted early in 1917. 

The “standard specifications” are designed to set up a graded service 
based on functional lines, and offering a gradual advancement and pro¬ 
motion from the lowest and entrance grades to the higher positions of 
employment and are a basis for setting up examinations, both original 
and promotional, and of value in setting up standards of work for the 
several grades. The results contemplated are set up on pp. 10 and 11 
of the specifications. 

To accomplish all of these things, or any of them, the needs of 
the service must be made the subject of a very thorough study and 
analysis under the direction of the commission. 

That this was not done seems evident from the great amount of 
resurvey work done by the efficiency division and from the fact that 
for some departments the civil service commission does not hold pro¬ 
motional examinations, but allows the head of department to make 
nomination therefor, after which the efficiency division makes an in¬ 
vestigation of the individual case. 

In connection with this matter, it is recommended that these speci¬ 
fications be revised, by a conference between the efficiency division and 
department heads or representatives, and that the requirements and 
duties be set up on the basis of the results of the conference in which 
the duties and responsibilities of positions, and not the peculiar qualifi¬ 
cations or temperament of the individual incumbent, are the matters 
discussed. 

No individual cases of imperfections are in mind as the time allowed 
for the study did not permit the close analysis of any particular position 
in connection with the specifications. The definitions of duties and quali¬ 
fications must be worked out with great accuracy to insure the proper 
selection of incumbents for specific duties through the. process of ex¬ 
amination. 

The same section authorizes the preparation of rules “for main¬ 
taining and keeping records of the efficiency of officers and employes”, 
and Sec. 486-18 empowers the commission to make investigations for 
the determination of efficiency and to fix standards thereof, and also 
makes the compliance with the commission’s requirements mandatory 
on officers and employes. 

Up to this time there have been no service records prepared and 




10 


put into general use, and the ratings in promotional work have been 
approximations at best. 

The preparation of service records is a matter that has never been 
solved entirely satisfactorily in public service, and there has been a 
natural hesitancy in inaugurating an incomplete or an unsatisfactory 
system of record^. A start should be made in this work as the fact 
record of performance is the only proper basis of determining merit for 
advancement or promotion, and it will develop as work on it progresses. 
This work should be done and the records started before reorganization 
and other efficiency studies are contemplated. 

The classification or standard specifications lack all mention of 
standard salaries for the several services except the clerical and the 
engineering group of the professional service. 

The establishment of salaries is a legislative function — and one 
that should be attended to at once by the present legislature. ■ The re¬ 
vision of all salaries and the determination of new rates and ranges of 
compensation for all groups and grades, should be based on the present 
cost of living, the market value of the sarne service in Ohio, and the 
value of the work. 

The present schedule of salaries is so low in Ohio that it is an 
astonishing fact that there have been any in the service who could afford 
to stay. That many have been unable to stand the economic pressure 
is indicated by the “turnover” records, notably in the highway depart¬ 
ment. 

examinations: exemptions as to soldiers and sailors 

Sec. 486-10 — The constitution authorizes no general class exemp¬ 
tion from the application of the competitive examination. The law of 
1915 introduced the preference provision for veterans of the Civil War, 
requiring them to file a certificate of discharge merely, and without ex¬ 
amination they become eligible for! appointment. As bad as this seems, 
the results have shown that the veterans of the War of the Rebellion are 
too old and infirm to) undertake even public service, and they realize it. 
However, the Liggett Bill, senate bill number 3, 1919, contemplates 
bringing veterans of the Spanish American War and the war with the 
central European powers, including all branches of service and nurses, 
under the same broad provision. 

No one can reasonably refuse land, bonds, pensions, or other val¬ 
uable things to the men who defended democracy for us and we cannot 
assume that the bill was introduced with any but the most patriotic 
motives. The result on civil service will be essentially the same, however, 
as though it were deliberately intended to kill all competitive methods 
of selection for the service of Ohio. 

On its face it seems unconstitutional. The result, if the bill passes, 
will be that eligible lists will be filled with returned soldiers, whose fit- 


II 


ness is questionable and whose appointments will be largely, if not en¬ 
tirely, determined by the pressure of one sort or another that may be 
brought to the appointing officer. 

The employment situation now is grave enough to be considered a 
national emergency. There is a general sentiment among non-com¬ 
batants that' the returned soldiers themselves do not want such legisla¬ 
tion. This is evidenced by an editorial in a recent issue of the Saturday 
Evening Pbst: “We are not afraid that an army that fought for an 
ideal and thirty dollars per month will! turn spoilsmen when faced with 
a national emergency”. The committee is urged therefore to assist 
by every means in ascertaining that this bill express the sentiment of 
the organizations of returned soldiers, and whether there are not other 
ways of showing patriotic appreciation for this service. 

APPLICATIONS 

Sec. 486-11 —^ Concerning the application themselves, there is no 
comment. The charge fees of 50c and $1.00 for examinations for posi¬ 
tions paying below and above $1,000 respectively is unusual. The 
revenue derived is inconsiderable. If it was intended to keep out un¬ 
qualified candidates from the examination it may discourage a few, but 
a more efficacious method seems to be easily found in more rigid re¬ 
quirements. Otherwise the charge seems too small and picayunish to be 
made by the great state of Ohio. 

APPOINTMENTS 

Sec. 486-13—Under the present wording of this section, , an ap¬ 
pointing officer has unlimited time to make an appointment after the 
certification of names from an eligible list.. An explicit statement that 
appointments shall be made within fifteen days from the date of the 
certification would have two results: first, the appointing officer will 
avoid the appearance of “jockeying” with eligible lists; and second, 
the civil service commission must certify the names of persons who are 
not only eligible but available, which is often quite as important. 

TEMPORARY AND EXCEPTIONAL APPOINTMENTS 

Sec. 486-14 — Though temporary appointments are one of the com¬ 
monest means of evading the strict application of the law, the provision 
permitting them is absolutely necessary, The number of temporary 
or provisional appointments in force is a very good index of the activity 
and vigilance of the commission as is the length of time for which they 
are permitted to run. 'The wisdom of the requirement that successive 
appointments (temporary) to the same position be not allowed, is doubt¬ 
ful as there is a question whether it is better to incur added expense by 
changing the appointee, or permit an appointment with some political or 







personal preferences until the position can be filled by the regular pro¬ 
cedure. The retention of one appointee of the temporary character, while 
being open to abuse, is a more business-like procedure. 

PROMOTIONS 

Sec. 4S6-15 — The law makes the filling of vacancies by promotion 
dependent on the practicability of the promotional procedure. The good 
of the service may sometimes be augumented by the infusion of new 
blood, and sometimes there may be no one in a lower grade with pre¬ 
cisely the qualification necessary for the position vacant. 

For the purposes of real organization, there should be understudies 
in every office under constant training for higher responsibilities, and as 
one of the factors making employment attractive, the opportunity for ad¬ 
vancement should be presented as often as is possible for the determina¬ 
tion on the questions of merit and fitness. 

Except in unusual cases, there should be the possibility of promo¬ 
tion from lower grades, the good of the service being the only considera¬ 
tion worthy of exception. 

The factors mentioned in the law as controlling promotional tests 
are merit, conduct and capacity in office, and seniority. “Efficiency and 
seniority in service shall form a part of the maximum attainable in such 
examination.” 

As promotional tests may form so vital a part of the machinery 
of the employment department, more time and space will be devoted 
to it here than may seem warranted. 

Promotion is defined as “advancement to a higher position, grade, 
class or rank — as to earn promotion by study or bravery”. It contem¬ 
plates a change of duty, and the definition indicates that it should be 
earned. For the purposes of this discussion “conduct and capacity of 
office” or efficiency in a lower grade may be considered one factor, 
seniority is mentioned as another, but the value of seniority as indicative 
of any positive virtue is questionable. The fitness for or ability to per¬ 
form the duties of the higher position should be another factor. “Merit 
and fitness” should be the determining factor in promotion in the civil 
service if anywhere. 

SERVICE RECORDS 

It is in connection with the determination of merit that the service 
record is being adopted in private employment generally, sometimes even 
being made the one basis of wage increases. It is true that conditions 
in private employment are such that it is much simpler to apply the serv¬ 
ice record to such uses, than those in public employment. The fact re¬ 
mains that to be productive of the desired results, promotions must be 
absolutely “on the square”. The service record is a record of facts in 
connection with individual service. The problem in developing the 


13 


records is to secure the proper information and give it its proper value. 
In private employment there are no such safeguards set up as are en¬ 
countered in public service, and the promotion or advancement is possible 
as soon as the merit therefor is discovered. The best that can be done in 
the public service is to give “efficiency” a rating to be used when a 
vacancy above makes a promotion possible. As the promptness with 
which merit is rewarded is a vital element in its appreciation, it is good 
business to attend to such matters promptly, but the public service must 
do the best possible under the handicap. 

The service rating must be done with absolute impartiality and on 
factors whose value may be given a definite rating rather than expressed 
in vague terms. 

Sec. 486-18 — amplifies the matter of “efficiency” as a factor in pro¬ 
motions, and the failure of the commission to establish some system of 
rating it is the most serious omission disclosed in the study of its 
work. 

The general plan outlined in subsection 15 and 18 is admirable. 
It would be strengthened were written and oral tests specified and made 
mandatory as part of the promotional procedure as a surer means of 
ascertaining fitness or qualification for the duties of the higher position. 

As the promotional system has such close relation to the vital ele¬ 
ments of the whole matter of employment, the matters mentioned de¬ 
serve attention at an early date. 

t 

TENURE OF OFFICE-REMOVALS 

Sec. 486-17-A — The tenure of office shall be “during good behavior 
and efficient service”. The question of removal is the most debated of 
any in civil service administration. As a matter of efficient and modern 
employment procedure, the provisions of this section are quite in line. 

The breakdown in discipline in an office to which an employe has 
been reinstated may be obviated by the simple procedure of having the 
investigation made before action is taken. In modern private systems, 
the employe is not discharged by a department head or foreman. They 
make a report, the employment department investigates, and if a change 
is desirable a transfer is arranged if possible, or some readjustment is 
attempted. In this connection the employe should not feel that he cannot 
be removed, and as a matter of conservation, the department head should 
use every effort to readjust the employe in some way before asking for 
a. discharge if there is any doubt as to the outcome of charges preferred. 

It is not the intent of the provisions of the law, and is not the wish 
of its administrators to keep incompetent and inefficient public servants 
in office. The inefficiency should be clearly demonstrated before any at¬ 
tempt at removal is made, and as suggested, the charge could be brought 
before definite action is taken and most of the objection to the present 




situation be removed by so doing. In private employment agencies the 
procedure is, briefly as follow's : 

The foreman or head of the department in which the. unsatisfactory 
employe works, sends a notice of the conditions existing to the employ¬ 
ment department, which at once institutes an investigation and if it is 
developed that conditions are as represented, an effort is made to trans¬ 
fer the employe to work at which he may be employed efficiently. Some¬ 
times the fault is located at the door of the foreman or department head, 
in wdiich case the action is taken there. As previously indicated, the con¬ 
servation of man power is so important that the effort to save a dis¬ 
charge is not abandoned until there is no doubt that the service t is better 
off with the man discharged. Some factories go so far as to make three 
readjustments of the individual before discharge is finally made. 

EFFICIENCY 

Sec. j 8 — As indicated, a start has been made toward getting the 
necessary foundation for service records and efficiency ratings. The 
standard graduated classification is only a beginning and while it may 
seem that more might have been accomplished, the rating of efficiency 
is an exceedingly difficult matter until salaries are standardized so that 
all doing the same work are receiving the same recompense, for efficiency 
is a variable for a grade in which salary should be a constant, practically, 
but never will be until definite authoritative action toi that end is taken. 

Whether the efficiency studies comprehend those of reorganization is 
doubtful and the wisdom of undertaking such studies before the entire 
service has been won to the efficiency of the examination and other 
fundamental procedure, is questionable. 

OTHER SECTIONS OF LAW 

The remaining sections of the law have to do largely with municipal 
commissions and penalties for violations of the law. 

The section establishing civil service in the municipalities probably 
has gone too far in the requirement; of civil service for all cities. The 
operation of the system in small cities is very unsatisfactory and probably 
unproductive of any real good. 

The failure to place any real supervisory functions in the hands 
of the state commission and to make the state commission a clearing 
agency for all sorts of civil service information is a disappointment. 
There should be some centralized control or supervision over the opera¬ 
tion of the law in the cities above say — : 50,000 population. 

ORGANIZATION AND FUNCTIONS OF THE COMMISSION 

The functions of the commission, together with the organization 
of its personnel and the relations of” the several units are graphically 
shown in the chart accompanying. The only modification of the present 



&5 

organization lecommended at this time is to place the efficiency division 
under the direction of the chief examiner, as an adjunct of the examin¬ 
ing division. 


WORK OF THE COMMISSION 

In making, the investigation, practically all work was done in the 
offices of the commission, going through its records and in conference 
with the commissioners, the secretary, the examiners and the clerks of the 
several divisions. 

The work done by the commission itself covers a wide range, as it 
includes the usual administrative functions, functions almost legislative 
in the formulation of rules, and in hearings and trials its functions are 
nearly, if not quite, judicial. 

LEGISLATIVE FUNCTIONS 

These .are expressed in the rules. The criticism of the rules of 
the commission reflect onto the law itself, as the latter gives the commis¬ 
sion no means of enforcing the rules prepared by it. Whatever short¬ 
comings there may be in the rules, are inconsequential in > comparison to 
other matters. 

JUDICIAL FUNCTIONS 

These functions are performed in hearings and trials, relative to 
appeals from rulings of department heads and for discharge after 
charges have been filed. There have been many of these. A number of 
cases were investigated in Columbus, in which dissatisfaction had been 
expressed by individuals having no interest except that of good citizen¬ 
ship. The records of the commission were scrutinized, the commissioners 
and officers of the commission were interrogated and in each instance 
the decision rendered was the only one that could have been made in the 
facts adduced in the testimony, and under the law. 

Since leaving . Columbus, many allegations as to the unwarranted 
action of the civil service commission have been made and have reached 
the field agent. The latter holds no brief for the civil service commission, 
but does appreciate the unthinking manner of most disgruntled position 
seekers in making and giving publicity to criticisms on the methods of 
the civil service commission. If a small percentage of the reports werc- 
true, generally the mere removal from office would be no fit penalty. 

It is suggested that the committee on administrative reorganization 
ask the civil service commission to appear with records and make such 
statements and answer such questions as the committee deem pertinent. 
Such charges are serious matters. If true, the state should know them 
and get its information straight; if untrue, the state should know it just 
the same, but the commissioners should be given the opportunity to be 
heard authoritatively in any event. The commission was expecting to be 






i6 


called before the committee as were other departments, at the time the 
study was made, but at the last advices, the commissioners had had no 
hearing. 

ADMINISTRATION 

These duties are divided pretty evenly between the record division 
and the examination division. The publicity division consists of one man 
only, and the efficiency division of two examiners and a stenographer. 

The administrative functions of the civil service commission simply 
expressed are: 

First — To hold competitive qualifying examinations for determin¬ 
ing eligibility for appointment. 

Second — To establish such eligible lists. 

Third — To make certifications from eligible lists to fill vacancies. 

Fourth — To see that appointments are made from such lists duly 
certified. 

Fifth — If no list exists, to authorize a temporary appointment. 

Sixths—To keep records of service on all employes, to the end that 
efficiency may be promoted. 

Seventh — To control promotional procedure. 

Eighth — To check all payrolls — relative to the legality of the 
appointment of all persons included thereon. 

The record division is concerned with all of these functions except 
the first, sixth and seventh — although it does the actual compilation 
of the eligible list. 

The examination division has the first and second and the efficiency 
division has the sixth. 

RECORD DIVISION 

A detailed exposition of the minutiae of this and the other divisions, 
with exhibits of forms, blanks, and records has been prepared and dis¬ 
carded as being unnecessary to indicate the work done. However, a 
synopsis of the work of the record and other divisions will be useful 
in following the procedure and indicating its volume. 

PROCEDURE IN CALLING AND HOLDING EXAMINATIONS. 

In order to indicate clearly the procedure of examination work, it 
may be well to follow through the entire process of calling and holding 
an examination with some of the 'detail in connection therewith. The 
necessity of an examination is disclosed, possibly, by the receipt of a 
requisition for certification for appointment. In case there is no list of 
eligibles the necessity for the examination is disclosed. This is made 
a matter of record in the record division, and in case the position is a new 
one it is referred to the efficiency division for a survey. In case the 
efficiency division reports adverse the commission takes action limited to 


proper classification. In case no eligible list exists a provisional appoint¬ 
ment is authorized by letter signed by the secretary. When this appoint¬ 
ment comes in it is referred to the certification clerk, and then to the 
efficiency division for approval. The commission then’ approves or 
rejects and the department is notified. This completes the provisional 
appointment and the form is referred to the pay roll clerk for record. 
An attempt is always made to find an appropriate list from which an ap¬ 
pointment may be made and referred to the commission for action. 
The necessity for the examination, of course is now clear, provisional 
appointment having been made, and in the preparation of bulletins all 
provisional appointments made since the last issue of the bulletins are 
included for the next issue. 

These bulletins are set up by title and grade from provisional ap¬ 
pointments and expired lists, etc. This list goes to the efficiency division 
for specifications, after which it goes back to the record division and to 
the examination division for dates of examination, then back to the* 
record division for the preparation of copy for the printer, after which 
the distribution is handled by the record division. 

, OTHER PUBLICITY 

In addition to the bulletin, which is given the widest circulation 
possible through all the usual official channels of the state, the commis¬ 
sion has a publicity clerk whose position is unique in civil service work, 
as far as the writer has been able to ascertain. This individual is con¬ 
nected with one of the Columbus dailies and it is through this connection 
that he is able to present all matters relative to examinations or pro¬ 
cedure of the commission, and any other business relating to the work 
of the commission to the people of Ohio as news. The! salary paid this 
publicity clerk aggregates $720.00 per annum and probably is the best 
money spent by the state for publicity. 

PROCEDURE AFTER THE ANNOUNCEMENT OF EXAMINATIONS IN BULLETINS 

The examinations have been announced in the official bulletin and 
through other channels, and applications are being received. These ap¬ 
plications come to the record division, are checked as to time received, 
and are sent to the examining division where the qualifications are 
checked and returned to the record 1 division, if approved. Cards of ad¬ 
mission are sent out. If the applications are disapproved they are re¬ 
ferred to the civil service commission with the reasons for official 
action of the commission. 

One week prior to the examinations, the examination clerk prepares 
a report on applications received for the examinations to be held in each 
of the five cities of Columbus, Cleveland, Cincinnati, Dayton and Toledo, 
and ample provision is made for such examinations. After the examina- 





i8 

tion the papers are returned to the record division on the night of the ex¬ 
amination with the admission cards, which are checked with the applica¬ 
tions. Character questionnaires are sent to the persons named as refer¬ 
ences in the application. The examination clerk assembles the papers 
by subjects and makes up grading sheets for each subject and each ex¬ 
amination and sends to the examining division for rating. After the 
examining division finishes its work the papers are returned to the record 
division and tabulation of cards are made by the examination clerk and 
the final ratings are established. All purely clerical work in this con¬ 
nection is done in the record division and all eligible lists are prepared 
here. These lists are then submitted to the examining division, then the 
civil service commission for approval, after which they are returned to 
the record division and cards of eligibility and failure are sent out to 
candidates; eligible cards are prepared for the file and typewritten lists 
are prepared. The report is then made on the eligible list showing the 
.eligibles serving in provisional appointments anad requesting instruc¬ 
tions as to certification. Before the end of each month the record divi¬ 
sion reports on the eligible lists expiring the following month in order 
that action may be taken terminating or extending the list. 

' ELIGIBLE LIST BEING AVAILABLE 

In case there is an eligible list available when a requisition is made 
the certification is made by the record division and sent to the secretary 
for his signature. Action on this certification is expected within fifteen 
days. Persons certified are notified with the reply. If no reply is re¬ 
ceived within six days a follow up certification is made. If a waiver is 
made another certification is made as soon as is possible in order to keep 
the fifteen day limit down. If there is no report received in fifteen days 
the record division reports to the civil service commission and action 
is then taken. The secretary writes a letter, a copy being sent to the 
record division and referred to the payroll clerk, and a report is made on 
the payroll, if necessary. 

CERTIFICATION OF PAYROLLS 

Roster cards are made up from lists of appointments, also entered 
on eligible lists. The roster cards are filed by departments and also al¬ 
phabetically. When the pay rolls are sent to the office of the commission 
the roll .is checked with cards on the roster and notations of the date of 
checking same is entered on the roster card. These cards are filed in 
“cardex” files for convenience. The payrolls and the cards themselves 
are set up according to the appropriation or apportionment listing for 
convenience in checking. If the payrolls do not agree in detail with the 
information on the roster cards as to title, salary, legality of appoint¬ 
ment, date of appointment, etc., report is made by the payroll clerk to 


the chief clerk who checks back, and if the matter/ is found O. K., is 
approved. Any matter not approved by the chief clerk is sent to the 
commission for action and if it is not approved by the civil service com¬ 
mission it is so indicated and sent to the auditor of state for action. 

EXAMINATIONS 

The examination procedure of a commission is the feature of civil 
service work that will make it successful, or cause it to founder more 
easily than any other factor, s&ve downright crookedness throughout 
its administration. 

The work of the examination division may be divided generally as 
follows: 

Preparation 

Conduct 

Rating 

All three factors require ability above the average and unquestioned 
probity. 

PREPARATION 

The specifications set up general duties and qualifications as a basis 
for examinational procedure. The problem of developing a schedule of 
subjects for an examination, wide enough in scope to disclose all of the 
vital questions concerning a candidate’s ability to perform certain duties, 
and selecting questions in each subject that will develop the detail with¬ 
out making the examination too long and arduous and at the same time 
disclosing all of the vital points is a difficult one. 

The oral examination is becoming more and more valuable in ex¬ 
amination work, since without it, the examination results much as does 
“buying a pig in a poke”. The personality, address and temperament of 
candidates are so important, particularly in the higher positions, that 
without the oral examination, for their determination and evaluation a 
good 50% of the examination is omitted. Stenographic reports of all 
oral examinations should be kept. 

The preparation of questions and the application of the weights 
must be' done by men who know the work of the position for which 
the examination is held. Every precaution must be taken against the 
leakage cf information of any sort concerning the examination. 

CONDUCT OF EXAMINATIONS 

Examinations must be conducted by experienced men familiar with 
the advanced methods employed to secure unlawful information, men 
forceful enough to command attention and respect and courageous 
enough to carry out to the letter all provisions covering fraud in ex¬ 
amination. 

The conditions of the examination should be made to conform as 
closely as possible to the usual office and laboratory conditions. 







20 


RATING 

Probably there is no work that has been generally done in so slip¬ 
shod a manner as the rating of civil service examination papers. This 
applies with especial force to the rating of papers in “experience”. 

Schedules of rates should be set up before the work is begun and 
the rating done m accordance therewith. All ratings should be checked, 
and verified. In questions in which there is a reasonable allowance for 
judgment or opinion , 1 the ratings should be brought to within 20% of 
each other, if two are rating the same papers, and when a greater dif¬ 
ference exists, the ratings must be reconciled. 

In rating oral examinations the rating should be done before an¬ 
other candidate is examined. At least two and preferably three examin¬ 
ers should do the rating, when by the way, the facts adduced in the ex¬ 
amination are the least important part of the work unless the examina¬ 
tion is confined to the oral. 

In all of this work, as elsewhere in public service, 100% honesty 
is demanded and expected. 

The description of the examination procedure that follows will dis¬ 
close points of divergence, occasionally, with the standards of procedure 
outlined above. 

EXAMINING DIVISION 

1 he examining division, while theoretically under the direct super¬ 
vision of the chief examiner is practically under the supervision of the 
assistant chief examiner, Mr. Schlesinger. Mr. Schlesinger is an en¬ 
gineer of wide experience who, as indicated, has general charge of the 
examining division, subject, of course, to the approval of the chief ex¬ 
aminer. Mr. Schlesinger also has charge of the technical examinations. 
The other examiners are Mr. Bailey who has charge of the examinations 
for stenographers, typists, etc.; Mr. Baker who has charge of the ex¬ 
aminations for social investigators and miscellaneous; Mr. Brandt who 
has charge of the examinations for the clerical service, accountants, book¬ 
keepers, etc. In addition to these examiners the commission has recently 
employed Mr. Perrin, who was in the Psychological division of the medi¬ 
cal corps of the United States Army, who is giving examinations for the 
skilled trades, doing work in connection with medical examinations and 
is conducting psychological tests as checks on the regular examinations 
held by the commission. In the skilled trades, the trade tests used in 
the army are being used with great success. The most that can be said 
now, possibly, in connection with the other psychological tests is that they 
are a decidedly valuable adjunct, and that they promise to become a very 
important part of the work of examination in the near future. 

Mr. Schlesinger conducts the examinations held in Columbus. The 
other examiners have no regular assignment but report as assigned to 


21 


Cleveland, Toledo, Columbus, Dayton, Cincinnati and occasionally in 
other cities and in county seats. The rating is always done by at least 
two examiners who check each other. One of these examiners being the 
individual who prepared the examination. Requests for rerating are re¬ 
ceived very seldom, there being possibly two requests per bulletin, that is, 
about two requests to twenty-five examinations. 

Since Mr. Schlesinger has been in charge of the examination work 
no ratings whatever have been changed. The oral examination, which is 
a very important feature of all modern examinations, has been growing. 
in value, and is now included in all examinations. Outside of Columbus 
it is the regular examiner, and in those examinations held in Columbus 
special examiners are often employed in the examination. In lower 
grade positions, skilled and unskilled labor, guards, etc., the examination 
is practically entirely oral consisting essentially of trade questions 
throughout. No stenographic notes are kept as a rule, but it is done in 
some cases. 

In the unskilled trades examination the army tests are being used. In 
clerical examination the so-called concentration tests are being used 
with splendid results. 

A large number of 'examinations were scrutinized and* studied for 
the purpose of ascertaining and weighing the scope covered by the ex¬ 
amination, and the weights, assigned to the several subjects therein. The 
scope and weights, as a general rule, show very careful consideration 
of all of the factors from which these schedules must be set up, and no 
suggestions of any moment are offered in connection with the preparation 
of these examinations and questions. The practical test in all of the ex¬ 
aminations investigated was shown to be thorough and based on the re¬ 
quirement of the position itself. The use of the army or concentration 
tests, and the so-called “nut” tests, together with the general use of the 
oral examination indicate a spirit of progress that is most commendable. 
Merely as an indicative of the quality of the examination assistance that is 
being employed by the Ohio state commission, it is desired to call at¬ 
tention to the following list of examiners secured for the examination for 
District Health Commissioners in Ohio. 

Ass’t. Surgeon Allen J. McLoughlin, U. S. Public Health Service, 
Washington, D. C. 

Surgeon L. L. Lumsden, U. S. Public Health Service, Washington, 
D. C. 

Dr. Walter F. Rankin, Sec’y. of the State Board of Health, Raleigh, 
N. C. 

Mr. Sherman Kingsley, Sec’y. of the Welfare Federation, Cleve¬ 
land, O. 

Dr. Otto P. Geier, Cincinnati Milling Machine Co., Cincinnati, O. 







22 


EFFICIENCY DIVISION 

The efficiency division consists of Mr. Davis and Mr. Rymer, as¬ 
sisted by Miss Shirner, all under the general supervision of the secretary 
of the commission. The functions of the efficiency division are roughly 
separated into two groups, those relating to inside, office work and those 
outside of the office. The work inside of the office 'is confined to the 
preparation of bulletins, the preparation of standard entrance require¬ 
ments, analysis of duties, the preparation of new standards on new 
positions. In the case of promotions made without examination, the 
efficiency division is expected to investigate the work of the individual 
whose promotion is requested and report thereon. The efficiency divi¬ 
sion has prepared quite an elaborate list of factors for consideration in 
studying matters of service and efficiency and divided roughly into quality 
of performance, and quantity or volume of work, qualities of action, 
qualities of mentality, attitude toward work and physical fitness. This 
division is, of course, charged with the preparation of service records 
and efficiency ratings. Service records and efficiency ratings have not 
been developed by the efficiency division. As a matter of fact, there 
has been no system developed in public service that works with the same 
smoothness that may be expected in an industrial plant where the quan¬ 
tity and quality of the output, and its value consequently are easily 
measured. 

This fact should not act as a deterrent to the extent that nothing 
is done, however. It will be far better to install a system, admittedly 
filled with flaws, and make the attempt to apply it honestly through the 
service, than to wait for the development of a perfect system by some¬ 
one else. Should a system evolved elsewhere, be tried, it would in all 
probability have to be modified before it would meet all the requirements 
O'f the Ohio service. Nothing is gained by delaying and in the mean¬ 
time promotional procedure is becoming demoralized. 

Most of the time of this division is consumed in the work of re¬ 
surveys. Resurveys are requested first, when it is desired to make a 
change in the duties of an individual, and second when there is an in¬ 
crease in compensation sought. These are necessary by reason of the 
increasing volume of work and the increase in diversity of the functions 
of the several departments. 

The work of the efficiency division is of the sort that requires time, 
and the matters handled by it are evolved and not made outright. 

The changing conditions require resurveys, a function that enables 
the commission to garner much valuable information, and prepare more 
intelligently for examinations. As is indicated throughout this report, 
it is felt that this division should confine itself to work in the revision of 
the specifications until it will be impossible for a person to qualify in 
examinations and “fall down on the job”. 


1 


23 


The resurveys are made whenever requests for increase in salary are 
received on the recommendation of a department head. In present con¬ 
ditions it is hard to see how any request for increase could be refused, 
and few have been. 

The division has done much work in research that has not seen 
the light and as indicated above, everything in the work requires time 
for its development and acceptance. 

A county survey has been started and it should be completed. When 
it is realized that there are seven counties in the state whose service is 
approximately equal to that of the state, its importance may be realized. 

Two men cannot accomplish much in this work. A few young men, 
clerks of the right sort who could do accurate reporting and help out in 
the routine work, would be invaluable. 

A tabulation of the work of the commission, by years, since accurate 
records have been kept is presented below. 


Year 

Exams. 

Scheduled 

Exams. 

Held 

No. Ap¬ 
plicants 

1 T3 

X % 

w.s 

. E 

O rt 

£ " 

Ave. No. 
Examined 

Per Exam. 

Qualified 

Failed 

Appointed 

1915 .. 

164 

154 

4,519 

4,205 

27.3 

2,527 

1,000 

349 

1916 . 

220 

174 

3,771 

3,582 

20.6 

2,428 

1,012 

498 

1917 . 

185 

163 

3,427 

3,127 

19.2 

2,025 

1,104 

433 

1918 . 

257 

255 

2,804 

2,487 

9.7 

1,597 

774 

688 

: 


The falling off during the war is clearly indicated in the column 
average number examined per examination. 

The figures for the year 1918 show that the commission was un¬ 
usually active in holding examinations and that the results of such ac¬ 
tivity were far below the usual, and that the appointments were more. 

This state of affairs indicates the result of war activities and prob¬ 
ably some restlessness, and that there were not the usual inducements to 
take examinations. 

Probably the war and the failure to increase salaries will account 
for practically all of the differences noted. 

PROMOTIONS 

A large percentage of promotions are made without examinations. 
This is done at the request of the department head, who must give his 
reasons for making or suggesting the promotion to the civil service 
commission with as much supporting data as may be required by the 
commission. The commission then takes the matter of promotion under 
advisement and acts thereon. 



























24 4 

Until a detailed system of service records is developed and a logical 
and just method of rating these records for efficiency is worked out, 
the matter of promotions will never be satisfactorily handled. The most 
that can be said for many of the systems that have been devised and 
put into practice to accomplish these ends, is that they have caused heads 
of departments to think seriously about these matters and they probably 
resulted in the mere impersonal regard of the individual in connection 
with the position. The great thing in any system of this sort, however, 
is to have whatever standards are applied applied with fairness and 
justice throughout the range of their applicability. 

The looseness in the promotional methods is probably resultant 
largely from the failure to install the service records and efficiency rat¬ 
ings, although in lieu of an almost entire neglect to take action on pro¬ 
motions, an examination that would test the comparative fitness and 
preparation of a candidate or preferably candidates for promotion could 
and should be held. 

The appointing officer should specify in what particulars his can¬ 
didate or candidates are particularly distinguished as to service, and such 
facts should be submitted and verified in addition to the examination. 

Without criticising appointments that have been made, the neglect 
to put the promotional system on a purely competitive basis. — in which 
“merit” and “fitness” are the determining factors, with “seniority” avail¬ 
able to settle tie markings, has been a mistake and is the one serious 
criticism of the examining activities of the commission. 

SUMMARY OF RECOMMENDATIONS 

I. The general assembly should amend the law to : 

1. Reduce the number of exemptions. 

2. Take the labor service from civil service jurisdiction. 

3- Include a schedule of adequate salary standards and rates 
in the classification. 

4. Eliminate the veteran preference clause from the present 
law and from future law. 

5. Make investigations of charges leading to dismissal, prior 
to the act of discharge, rather than,after. 

6. Make the state civil service commission the clearing agency * 
for civil service matters in the state. 

II. The commission is urged to: 

1. Revise the classification and specifications. 

2. Develop a system of service records and ratings. 

3. Follow the promotional procedure as outlined and contem¬ 
plated. 


25 


4. Keep eligible lists cleared on the basis of availability for 
employment by the state or the counties. 

5. Prepare a census of state and county employes under its 
jurisdiction. 

III. It is further recommended that the joint legislative committee 

on administration reorganization: 

1. Ask the civil service commission to appear with records, 
minutes, etc., and indicate to the committee the reason for 
actions considered by the committee to be questionable. 

2. Consider a plan to give the civil service commission, as the 
personnel agency of the state, ample opportunity to be 
heard in the preparation of budgetary requests for personal 
service, before both the governor and joint legislative com¬ 
mittee on budget. Personal service represents about one- 
third of the state budget, and the civil service commission 
has more data relevant to personal service than any other- 
state agency. 



























































LIBRARY OF CONGRESS 



0 033 239 115 A 


V 



